Observation Mission Report 2014 Population and Housing Census
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Republic of the Union of Myanmar Census Observation Mission Report 2014 Population and Housing Census May 2014 Acknowledgement This observation report is a result of a collaborative effort by the Myanmar Census Observation Team. The Observation mission was led by Nancy Stiegler, Census Observation Mission Coordinator, who compiled this report based on the state- and region-level reports of the observers: Ronnie Andersson, Aung Kyaw Phyo, Aristide Bado, Jayant Banthia, Clement Bula Basuayi, Rick Baxter, Roberto Bianchini, Bart de Bruijn, Hafedh Chekir, Garnett Compton, Theresa Devasahayam, Judith Donang, Roberta Fontana, Margarita Guerrero, Werner Haug, Johan Dawt Lian, Khin Ma Ma Swe, Khin Thu Zar Win, Kyaw Lin Thant, Maung Maung Toe, May Thwet Hlaing, Nobuko Mizoguchi, Myo Oo, Nang Mo Hom, Naw Mar Moora, Ricardo Neupert, Nyan Win, Nyana Soe, Nyein Chan, Nyi Nyi Aung, Kanayo Ogujiuba, Eleonora Rojas Cabrera, Lantona Sado, Sai Mein, Omas Samosir, Shwe Yee Win, Swe Swe Win, Thida Oo, Toe Myint, Tun Tun Win, U Than Sein, Wanna More, Ian White, Win Thein, Helio Xavier and Ye Thaung Htut. The observation team would like to acknowledge the invaluable support and cooperation by the Government of Republic of the Union of Myanmar, the Immigration Offices, the Census Offices, enumerators, 10 and 100 household leaders and other volunteers who facilitated the enumeration and the observation mission. The observation team would like to thank the donor countries for their support to the Observation Mission. The observation team is also grateful for the United Nations Population Fund Myanmar country office for their logistical support. Finally, the observation mission would not have been possible without the voluntary support of the respondents who participated in the census and allowed the teams to observe their enumeration. i Executive summary After three decades without a Population and Housing Census, a census enumeration was conducted throughout most of the Republic of the Union of Myanmar from 30 March to 10 April 2014. To vouch for transparency of the census and to better understand the way data were collected, the Department of Population within the Ministry of Immigration and Population (MOIP) put in place an independent Census Observation Mission. United Nations Population Fund and the donor countries were highly supportive of this initiative. Throughout the data collection, teams consisting of one international and one national expert independently observed the enumeration process across the country (except the inaccessible areas1 and the few areas that conducted an ‘Early Census’: Pan Hseng and Mine Lar in the Wa area; Puta-O in Kachin State and Co-Co Island in Yangon Region). One or two observer teams were deployed to each state and region depending on the size of the area. The experts are statisticians, demographers or social scientists; the international experts have previous experience with censuses and/or large- scale surveys in similar environments. In total, the observer teams visited 121 townships (36.6 percent of the total) and 901 Enumeration Areas (1.1 percent of the total) and followed 2,193 interviews (2,177 fully observed interviews, or 99.3 percent, and 16 partially observed interviews, or 0.7 percent). The sample of observed areas was randomly selected, except in Rakhine State where the sample was purposely selected to represent all the different settings and populations of the area. Objectives of the Census Observation Mission The Census Observation Mission was not conducted as a judgemental exercise; neither was it a monitoring nor an auditing assignment. The point of the mission was to objectively collect factual information on the way the enumeration was conducted in the field to ultimately understand the challenges and successes of the data collection phase of Myanmar’s first census in 30 years. The specific objectives of the observation mission were: document the census process and data collection in selected number of townships and Enumeration Areas; objectively observe the census against international standards and national legislation to increase the credibility and transparency of the census process; to provide regular feedback to the Government during census enumeration; and to document lessons learned and good practices for building capacity in future censuses. The observation mission was based on a methodology tested in several countries but specifically designed for the Myanmar census. The observers were trained on tools that they were to use for making their observations and collecting data. The observers conducted their respective assignments freely but with the essential help of MOIP personnel. 1 Parts of Kachin State controlled by the Kachin Independence Organization and some other areas controlled by armed groups were inaccessible for enumeration due to security reasons. iii Observers’ general conclusions Overall, the observers characterized the data collection in the areas they visited a success, with the exception of the areas inhabited by Rohingyas/Bengalis, especially in Rakhine State. Some of the observers, who have experience in developing and/or post-conflict countries (such as Albania, Bosnia-Herzegovina, Ghana, the former Yugoslav Republic of Macedonia, Montenegro, Nigeria, Sudan and Timor-Leste), said they had never witnessed such a good data collection exercise — from the publicity and advocacy campaign to the dedication of the census personnel and the positive attitude of the respondents to the logistical organization and the quality of enumerators to the enumeration itself. Strengths of the observed process The communication, publicity and advocacy campaign was considered effective in general because various publicity materials were seen throughout the visited areas. The observers noticed posters, billboards, audio messaging, community meetings, pamphlets, letters of information and hand fans even in villages and remote places. Several observers thought that such a good publicity and awareness campaign was rare in a census process and that it was the best census communication campaign they had seen as observers (excluding the situation in Rakhine State). The general atmosphere around the enumeration exercise was positive, and the mobilization of communities around the census was impressive. Most of the observers also thought that the population was well aware of the census exercise and that people wanted to be counted and to participate in the census. In no instance did the observers encounter a household or a respondent who refused to be counted due to lack of understanding of the census process. The organization of the subnational Census Offices varied from one area to the next; but overall, the observers thought that the data collection proceeded smoothly. The mobilization of the Census Officers was impressive, and they appeared to exert, together with communities, volunteers and non-government organizations, every effort to make the census a success. Language never appeared an issue, which is an achievement considering how multilingual Myanmar is. Having the privilege of deploying local enumerators (school teachers mostly and mostly women) to conduct the census in their own communities helped to overcome the potential issues associated with the co-existence of dialects. In most cases, the enumerators and respondents communicated in a common language. In all visited enumeration areas, the enumerators were present and actively working. In no instance did an observer notice any missing enumerator. The pre-census distribution of material did not seem to have any problematic issues; in all areas under observation, the field workers (enumerators and supervisors) were equipped with the necessary census materials; no serious shortage of census materials was noticed. Also, the enumerators all received the census outfit; the majority of them iv wore the complete uniform (the hat was less used by the enumerators), making them easily recognizable. The observed enumerators generally conducted their interviews with diligence, patience and professionalism. The observers noticed that the enumerators were very capable; all the observers commended their dedication to the census survey. Overall, the observed enumerators paid good attention to completing the questionnaire as instructed, using the 2B pencil and making sure that their handwriting was legible. The enumerators took good care of the questionnaires to ensure they remained clean, dry and flat. This is encouraging for the successful scanning of the census forms in the next phase of the census. The observers did not witness any data manipulation by any enumerator, such as not counting households or household members — except for the specific case of Rakhine State where the Rohingya/Bengali population had not been enumerated — or by adding households or household members. The data collection finished before the official census end date in numerous areas observed. Such a case is rare for a census, especially in countries that have not conducted a population and housing census for years. This situation is commendable, especially knowing that the observers rarely witnessed enumerators working in a hurry. Shortcomings of the observed process Despite the overall good impression they left on the observers, the enumerators failed to refer to three essential census components. First, they seldom explained the census when starting the enumeration (possibly because people had been made aware of the data collection beforehand). Second, an important